to ocean zoning and beyond james n. sanchirico resources for the future and uc davis josh eagle...
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To ocean zoning and beyond
James N. SanchiricoResources for the Future and UC Davis
Josh EagleUniversity of South Carolina, Law School
Steve PalumbiStanford University
Barton H. ThompsonStanford University Law School
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Regulating ocean uses
Faces four challenges: overuse of an ocean resource can lead to long-
term resource loss use of one resource will often affect the costs
and benefits of utilizing other resources usually more than one user group is interested
in each resource or space uncertainties on cumulative impacts and the
value of resources to various user groups
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A policy proposal
Some have proposed ocean zoning as a means to address these challenges
Like municipal zoning, zoning would divide the ocean into areas designated for specific uses or groups of compatible uses
More formally, zoning is being proposed as a coordinated place-based ecosystem approach for sustainable use and provision of ecosystem services
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Stated benefits of ocean zoning
Reduce conflicts by separating incompatible uses
Move towards ecosystem based management
Means to enhance conservation of marine biodiversity
Source of scientific information and hedge against uncertainties
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Focus of research
Explore the economic, biological, legal, and institutional ancillary benefits of ocean zoning Comprehensive planning Segregation of activities into use-priority Segregation of activities into use-priority
areasareas Ocean governance reform
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Features of zoning
Separates incompatible uses Rations the area over which activities can occur
improve the set of rights to places and resources improve clarity on who has the access rights
Both features lead to a set of localized goods and services whose set of users are limited and better defined
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Potential positive feedbacks…
Better defined access and use rights in places could set in motion the creation of place-based clubs Why might this occur?
Tastes for associating with each other Potential economies of scale/scope Sharing of information and more tangible goods
Eg. Angler management organization, business improvement districts Are there “ocean” business improvement districts?
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Potential positive feedbacks (cont.)
Place-based clubs could include broad memberships Offshore oil and gas platforms become
monitoring and management sites for offshore aquaculture
Environmental benefits of clubs Value of membership of the club is a function
of the health of the environment Better accountability for damages
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Why do we not see these clubs now?
Major reason is the lack of well-defined rights in the ocean (not the case on land) Problem is not self-correcting Generates significant transaction costs/barriers
for seeking out beneficial partnerships, negotiations, and collaborations
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How to ration within zones?
Best left to the users within each zone rather than prescribing in a top-down fashion Potential flexible mechanisms are leases and long-term
concessions
Any decentralized allocation mechanism needs checks and balances to ensure ecological and biological integrity are not compromised Pair responsibilities with rights through contracting
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Zoning as a catalyst for beneficial ocean governance reform
Three potential options: “Integrated agency”: all administrative
responsibility for all zones in a region “Coordinated agencies”: maintain current
structure but with coordination activities within and across zones
“Specialized Zone Agencies”: Specialized agencies to manage particular types of zones
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Do we really need zoning?
Nice concept but not necessary…. Ocean is very different from terrestrial
settings where fences make good neighbors Yes but new technological developments, such
as satellite tracking, GPS, remote sensing, vessel transponders, electronic log books are changing our ability to monitor and enforce “lines” in the water
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Conflicts will not go away…
Yes but zoning creates additional means to address conflicts and could lead to a co-management regime On land, there are three systems to address conflicts—
regulations & planning, judicial resolution, and private ordering Provides useful redundancy and flexibility
Marine context “only” regulation Constrained world creates wasteful rent-seeking incentives in
the regulatory process
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Many ideas on zoning….
Some envision a top-down regulatory mechanism
Some envision this as a way to privatize the ocean
System needs to fall in betweenSystem needs to fall in between
System needs to be dynamic & adaptiveExperimentation and learning
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In a nutshell…
Requirements of planning and use-priority management will enhance prospects for conservation and efficient resource use.
The potential for ancillary benefits follows from clearly defined boundaries, place-based rules, collective choice, right to organize, conflict resolution, and nested enterprises.
The process of integrating zoning into ocean management could be a catalyst for the necessary change in scope and scale of ocean governance
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Additional slides
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Source of maps to follow: DOI MMS Marine Cadastre program
Available at: http://www.mms.gov/ld/Maps.htm
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Official Protaction diagrams
Pacific region
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Source: DOI MMS Marine Cadastre program http://www.mms.gov/ld/Maps.htm
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“Coordinated agencies” model
Maybe the least desirable due to Higher transaction costs due to more
consultations and coordination Need to develop a system to resolve
differences of opinion across the coordinating agencies
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User group dynamics
Create opportunities to form informal or formal long-lived institutions coordinate their activities and maximize long-
term resource yield
Follows from clearly defined boundaries, place-based rules, collective choice, right to organize, conflict resolution, and nested enterprises
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Planning and use-priority management
Encourage a reassessment of the focus and scope of the regulatory institutions involved in ocean management enhancing prospects for conservation and
efficient resource use
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“Integrated Agency” model
Better match governance and ecosystem scale
Easier to adjust borders of zones over time Might reduce transaction costs by allowing
one entity to coordinate and monitor activities
Might make it harder for one interest/user group to exert power over decisions
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“Specialized zones agencies” model
Better match of expertise to management Better represent “weaker” interests/users,
such as marine conservation Natural experiments/scientific information
from different management controls over space
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Spatial regulation
Oceans already subject to significant spatial regulation Regulations evolved
over time in response to particular issues with particular users
No real coordination in the planning and design
# of fishing regs in CA state and federal waters
# of regs
# of spatial
% spatial
Com. 173 97 56%
Rec. 321 226 70%
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Zoning as a Catalyst for Beneficial Ocean Governance Reform
Part III
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Outline of talk
From ad hoc spatial regulation to ocean zoning
Use-priority zones, relationships among user groups, and efficiency
Zoning as a catalyst for beneficial ocean governance reform
Discussion
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Spatial regulation
Oceans already subject to significant spatial regulation Regulations evolved over time in response to
particular issues with particular users No real coordination in the planning and design
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Southern California
Source: Crowder et. al. Science v.313 August 2006
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Early systems of land-use
End of 19th and early part of 20th century, cities tried to regulate specific land uses (e.g., brickyards)
Lacked comprehensive planning land-use conflicts arose
Leading to comprehensive zoning in the 1920s and 1930s Zoning must be “in accordance with a comprehensive
plan…to prevent haphazard or piecemeal zoning.”
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Use-Priority Zones, Relationships Among User Groups, and Efficiency
Part II